Summary of the Carteret County land use plan

[From the U.S. Government Printing Office, www.gpo.gov]

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A SUMMARY
OF THE
CARTERET COUNTY
LAND USE PLAN

prepared by
NORTH CAROLINA DEPARTMENT OF NATURAL

RESOURCES AND COMMUNITY DEVELOPMENT

with assistance from

THE CARTERET COUNTY PLANNING DEPARTMENT

1978

This report was financed in part by the National
Oceanic and Atmosphere Administration and
the State of North Carolina, and meets the re-
quirements of the North Carolina Coastal Area
Management Act of 1974.

U S DEPARTMENT OF COMMERCE NOAA
COASTAL SERN[CES C
AUR

HD
211
.118
S86
1978

INTRODUCTION
In April of 1974, The North Carolina General
Assembly enacted The North Carolina Coastal
Area Management Act. This State law requires
that a plan for the future use and management
of the lands and resources in North Carolina's
Coastal Areas be prepared under the supervi-
sion of the North Carolina Coastal Resources
Commission. -fro
Responding to the requirements of this Act,
Carteret County and its incorporated towns
have conducted an extensive investigation into
the existing conditions and problems in the
I_-AZO
County associated with future growth and de iZ:
velopment. Throughout this process, the citi-
zens of the County were involved in the identi-
fication of these conditions and problems.
This Land Use Plan is to serve as a guide for
future growth and development in Carteret
County. Most importantly, it reflects areas
where public services are needed to serve ex-
isting and anticipated future development.
Also identified are areas that are most produc- A. The impact of the tourist trade affects
tive and should be reserved for agriculture and the use of land, as services must be
forestry, as well as lands that should be main- provided to accommodate the large
tained in their present state for various eco- numbers of persons visiting the Coun-
nomic or environmental reasons. ty.
This document is only a summary of the be- B. The fishing industry has long been a
ginning of the planning process. Additional way of life, as well as economically im-
programs must necessarily follow to provide portant to Carteret County. Of prime
the required facilities and services for existing importance to the fishing industry, and
and future populations, and to insure a bal- especially to shelifishing, is the quality
anced and coordinated effort to achieve the of the sounds and estuaries. Septic tank
goals and policies set down in the Land Use leachate, from densely developed
Plan. The narrative and maps included are in- areas, may reach the sounds and estu-
tended to serve as a guide to citizens and gov- aries, polluting the waters and adverse-
ernment officials for the future growth and ly affecting the state's fishing industry.
development of Carteret County. C. Farming in Carteret County is still an
important part of the economy. Farms
MAJOR LAND USE ISSUES AND are presently being converted through
PROBLEMS subdivision of land for new housing
Through analysis of public comment as well developments. If this trend continues,
as existing conditions of Carteret County, land it could create problems if some means
use issues which will be faced during the next of protecting the productive farm land
ten years have been identified. If these issues is not taken.
are not dealt with, land use planning in Carter- Ill. Providing services to people of the County
et County will not be effective. is an issue which affects the use of land.
The following issues have been identified: Several major types of services need to be
1. The impact of population has caused many examined:
demands on land development such as: A. Providing adequate housing can have
A. Increased demand for housing units obvious effects on the use of land. The
which has resulted in the conversion of most critical issue concerning housing
undeveloped land or rural land to resi- in Carteret County is the additional de-
dential use. velopment of mobile home parks.
B. Increased demand for public services Many of the present parks have crowd-
such as fire stations, schools, medical ed conditions and have inadequate lot
facilities, refuse collection and dispos- sizes for septic tanks to operate effi-
al, and the need for water and sewer ciently, creating potential health prob-
services. lems. if additional mobile home parks
C. Increased access problems around the are to be allowed, steps will need to be
County, but particularly from the taken to better ensure that health
mainland to Bogue Banks. problems are not created.
D. Decreased demands for employment B. Perhaps the most critical issue facing
opportunities, commercial services, so- the County is the provision of water
cial and cultural services. and sewer services. Questions that
E. Increased consumption and destruc- need to be answered should include:
tion of natural resources based on the 1. Should the County provide water
use or misuse of land. and sewer? if so, in what areas
F. The loss of cultural and historic re- should they be provided?
sources. 2. Who should pay for these services?

IV. Conservation of productive natural re- GOALS AND OBJECTIVES FOR LAND USE
sources is another important issue facing Once major land use issues have been identi-
citizens of Carteret County. Areas of pro- fied, a way of handling these issues needs to be
ductive natural resources in the County in- established. This has been done in the Carteret
clude coastal wetlands, estuarine waters, County Land Use Plan by the identification of
and other land necessary for the produc- land use objectives, policies and standards.
tion of food and to sustain wildlife. Land These objectives are designed to give the Plan-
development in the County is posing a ning Board and the County Commissioners a
threat to productive resource areas. The clearer indication of public desires and wishes.
County must face up to its responsibility to It is important to remember that all land use
plan for the preservation or wise use of objectives are not equally obtainable. with this
these areas. in mind, "trade-offs" need to be made to arrive
V. The protection of the natural environment at decisions consistent with the overall desires
goes hand in hand with the protection of of the residents and property owners of Carter-
productive natural resource areas. Carteret et County.
County encompasses a large strand of the The objectives determined by the partici-
Outer Banks, a large amount of estuarine pants in the planning process were as follows:
waters, and other natural environmental 1. Cultural and Historical Objectives
characteristics of coastal areas such as: A. Preservation of the historic importance
A. Flood prone areas of the County through:
B. Soils with septic tanks limitations 1. Identification of historic sites.
C. Groundwater aquifers which are sensi- 2. Subsequent management of these
tive to development areas that will preserve them.
D. Frontal dunes on the Outer Banks B. Preservation of meaningful local tradi-
E. Estuarine Waters tions and local culture through:
VI. In addition to the abundant natural re- 1. Land use regulations that empha-
sources throughout the County, there are size the value of the local traditions
many cultural and historic resources. In within each township. In particular,
general, public input seems to indicate community preservation and rede-
most residents are proud of their way of life velopment throughout the County
and enjoy living in Carteret County. The has been indicated as desirable and
cultural and historic resources in the coun- should be pursued.
ty attract many visitors and, in fact, have 2. Land use regulations and policies
helped sustain a viable tourist industry. that will encourage commercial
Without proper land use planning, the sig- and industrial development to fit in
nificance of these areas could be lost for- with existing development. Proper
ever. buffer areas should be emphasized.
CARTERET COUNTY PAST AND PRESENT 11. Land Development Objectives
A. Encourage major residential and com-
Carteret County's population has changed mercial growth to occur near munici-
significantly during the last several decades. palities to prevent leap-frog develop-
From 1950 to 1970, the county's population in- ment patterns, and to facilitate the ex-
creased from 23,059 to 31,603, or a 37 percent tensions of existing water and sewer
increase. The approximate population in 1975 facilities. This objective can be accom-
was 35,000. In 10 years (1985), the population is plished through the establishment of
expected to increase by another 9,100 people, water and sewer extension policies by
giving the County about 44,000 people. municipalities, which have these de-
But where will most of these people live velopments close to their existing
when they locate in the County? The majority boundaries, and through location of
of these people will live in and around the development near towns in future an-
towns, with a large concentration of people lo- nexation proceedings.
cating on Bogue Banks. B. Preserve the rural nature of the County
Seasonal population is also expected to in- outside the municipalities. When land
crease over the next 10 years. Presently, it is is developed in rural areas of the coun-
estimated that the year-round population on ty, it should be developed in a low
Bogue Banks is 2,000 people. An additional density residential character. Without
23,000 people reside there during the summer the provision of water and sewer ser-
months. And many additional day visitors come vices, most of the development will be
to the beaches during the summer months. To at lower densities. Also, through large
a great extent, the future land needs of Bogue lot zoning, the rural character can be
Banks will be dependent upon the needs and somewhat preserved.
desires of the seasonal population. C. Encourage the preservation of the
Another important aspect of the County's County's natural resources. All devel-
development is what the economic situation of opment should consider the potential
the County is and what it is expected to be. The effect it has on the County's natural re-
economy of the County has diversified into sources and insure maximum effective
many different businesses, services, and indus- utilization of public facilities and ser-
tries in recent years. In addition to commercial vices. Some resources that should be
fishing and farming, such areas as tourism, con- considered include: (1) Wetlands, (2)

Areas. These land development objec- the County including commercial and
tives can be achieved through: industrial activities in general, and in
1. Emphasizing the importance of particular, the tourist industry.
county land use regulations (zoning F. Increase efforts to attract non-offen-
ordinance, subdivision regulations, sive industry that will provide better
group housing ordinance, outer job opportunities and personal income
banks land protection ordinance, for citizens of the County. The Intra-
and mobile home park ordinance, coastal Waterway and the railroad ser-
and flood plain regulations). These vice in the County should be empha-
regulations should be developed sized as potential assets for industry,
and adopted in accordance with and land use regulations should be
the stated objectives of this land used to protect desirable industrial lo-
development plan. cations.
2. Proper use of the land classification G. Continue to emphasize agriculture and
system provided in this land devel- livestock production throughout the
opment plan. County. This can be done in some of
3. Emphasis on inspection and en- the following ways:
forcement procedures. 1. Continued efforts to assure that the
Ill. Economic Objectives deferred tax incentive is under-
To develop an effective program to provide stood.
better job opportunities and increase per- 2, Emphasize the importance of the
sonal income for all citizens of Carteret Agriculture Extension Service and
County, without significantly affecting the Soil Conservation Service within
"traditional" way of life so important to the the County. They are able to help
citizens of Carteret County. It is hoped this evaluate the proper use of farm
objective can be achieved by: land, and can help with production
A. Continued emphasis on tourism as a methods and marketing.
major source of income for Carteret 3. Try to pinpoint productive areas
County. It should be noted that efforts that are not being farmed at the
should be closely coordinated with all present time through the use of the
local governments and organizations comprehensive soil survey (now in
within the county involved in tourist progress), and the professionals
related activities. These interests in- within the Agriculture Extension
clude: Service and the Soil Conservation
1. Sport Fishing Service.
2. Hotel and Motel Service H. Encourage and promote the commer-
3. Restaurants cial fishing industry within the County
4. Retail stores relying basically on through:
tourist business 1. Land management that will help
5. Other retail interests and services preserve the productivity of the
that help support these interests estuarine waters within Carteret
and other tourist related business County.
(for example the construction in- 2. Help coordinate the interests of the
dustry). local commercial fishermen with
B. Development of plans identifying areas regional organizations such as the
to accommodate retail trade and ser- food service extension services of
vices for the expanding population of North Carolina State University.
Carteret County, and those who visit This can be done through the
Carteret County. Land use regulations County Planning Department and
should be coordinated with the muni- the Carteret County Economic De-
cipalities so as to assure proper devel- velopment Council.
opment of retail trade and services. IV. Service Objectives
C. Encourage additional import and ex- Provide these services desired by the citi-
port tonnage through the Port at zens of Carteret County so as to improve
Morehead City. This can be done by the living conditions of all citizens of the
efforts to monitor the needs of imports Cou nty.
and exports within North Carolina, and A. Encourage the development of a re-
coordination with the port of Wilming- gional water and sewer plan and its im-
ton to assure the most effective use of plementation.
both facilities. B. Encourage and strive for the develop-
D. Emphasize and encourage improved ment and improvement of recreational
transportation facilities. This includes opportunities and facilities for citizens
highways and roads, the Beaufort- of all ages. This can be done through
Morehead Airport, and freight services close attention to the Carteret County
within the County. Recreational plan and its proper imple-
E. Encourage and assist in providing im- mentation.
proved navigational channels in the C. To provide for the protection of the
County. This includes the Intracoastal County's dunes system on Bogue
Waterway, the "Deep Water Channel" Banks. This is to be done by providing
for the port, and other service chan- adequate crossovers for access to

decisions which will affect the future of the a majority of the people are expected to locate
County - both ecologically and economically. on Bogue Banks, it will be necessary to provide
It is apparent that the decision to do nothing central water and sewer facilities to keep from
and let nature take its course will eventually be creating potential health hazzrds. In addition to
countered at either the State or Federal level, water and sewer services, highway upgrading
or both. From strictly a health standpoint, the will be necessary. The main road on Bogue
quality of water cannot be allowed to diminish Banks is not designed to handle peak seasonal
to the point that it is no longer usable. traffic at the present time, let alone future in-
Until such time as central sewage treatment creases in traffic volume. Also, the idea of addi-
facilities become available to the most sensitive tional access to Bogue Banks may be necessary.
areas, (Bogue Banks, Bogue Sound and along Although population growth may mean
the rivers), the County needs to implement a prosperity for an area, it can be costly to tax-
series of actions which will aid in protecting payers. The demand for services will place
water quality. These actions include, but are additional burdens on taxpayers and if devel-
not limited to the following: opment is not well planned, the County will
1. Provide lower density requirements ultimately suffer from loss of natural amenities.
through large-lot zoning in the identified it is up to the people of Carteret County to
sensitive areas. determine if growth is to occur with little or no
2. Adopt strict local septic tank regulations. restraint. This decision will determine what
3. Strict enforcement of septic tank regula- additional costs will be paid by the people of
tions. the County.
4. Adopt and enforce strict sedimentation
control to eliminate as much as possible LAND CLASSIFICATION
runoff from construction projects. Also, The land Classification Map is the heart of
some means of controlling agricultural the Plan. It is a statement of County policy re-
runoff needs to be put forth. garding future growth and therefore, the use of
5. Strict enforcement of subdivision ordi- land and water resources. Specifically, the map
nances in the towns and County. indicates: where new development should take
6. Strict enforcement of the Dunes Protec- place; the general kind of development it
tion ordinance. should be; and, how much development
7. Require some form of environmental im- should be encouraged over the next ten years.
pact assessment prior to each new project The Land Classification Map is intended to
begun in the County or town. improve County government in several ways:
Most of the foregoing actions are already at (1) the state and federal governments are re-
the County's disposal. Only more strict en- quired to respect the County's development
forcement is needed to improve the situation. objectives as expressed in the plan; (2) the
All of the foregoing recommendations are county will be better able to evaluate the ef-
presently available to the County and towns to fects of large-scale developments; (3) the
adopt as ordinances to enforce. County will be in a stronger legal position to
FUTURE GROWTH enforce its zoning and subdivision regulations,
Public participation received throughout the to improve its tax program, and to employ oth-
early planning process has indicated most resi- er modern development controls.
dents are pleased with the nature of the County Briefly, the Land Classification system works
and do not care to see drastic changes in popu- like this: All land in the County is placed into
lation. In most cases, low to moderate increases one of five classes according to its ability to
in population were indicated as desirable. handle growth, and according to the County's
The desired growth rate is as follows: ability to provide the public services needed by
Year 1975 1 1980 1 1985 1 2000 1 2025 that development (water and sewer, police and
Population 35,000 1 39,550 144,100 156,600 170,000 fire protection, etc.).
In ten years, the County's permanent popula- The five classes are defined as follows:
tion is expected to increase by 9,100 people. DEVELOPED - Lands where existing popula-
The seasonal population of Bogue Banks during tion density is moderate to high; and where
the next 10 years is expected to go from 25,000 there are a variety of land uses which have the
in 1975 to 37,000 people. necessary public services, including water and
it should be pointed out that the expected sewer.
population 50 years from now is 70,000 people. TRANSITION - Lands where local government
However, if built-in growth factors such as the plans to accommodate moderate to high densi-
number of vacant lots and present zoning den- ty development during the following ten-year
sities are examined, it appears that potential period. Water and sewer and other public ser-
growth could actually double the expected vices will be provided to accommodate that
population of 70,000. In order to keep the pop- growth.
ulation increases as near to the desired goal as COMMUNITY - Lands where low denisty
possible, the County and the towns need to development is grouped in existing settle-
take steps to curtail the potential increases. ments, or will occur in such settlements during
One possible way of doing this would be to the next ten years, and will not require exten-
change present zoning ordinances to allow for sive public services now or in the future.
less density, especially in those areas not ex- RURAL - Lands whose highest use for agricul-
pected to have sewer services. ture, forestry, mining, water supply, etc., based
In order for the expected growth to occur, it on their natural resource potential.
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towns, will attempt to provide parking attempt to involve individuals from all 16
facilitie's at selected areas along Bogue townships.
Banks with crossovers provided near- B. Questionnaires were distributed at each
by. Crossovers are an inexpensive public meeting in order to stimulate dis-
method of preserving the valuable cussion and to firm up some basic levels
dunes system which protects the main- of public participation.
land during storm surges. C. Ideas were also solicited from a 13 mem-
D. Encourage and emphasize fire, police ber advisory commission made up of a
and rescue services for all citizens of cross section of Carteret County resi-
Carteret County. All of these services dents.
should be analyzed and expanded as D. The Carteret County Planning Depart-
the population increases. ment also reviewed the results of the
E. Encourage and emphasize the solid public participation process for all of the
waste disposal program through: municipalities within the County.
1. Proper landfill management.
2. Proper collection procedures. WILL THE LAND SUPPORT THE PEOPLE?
3. Proper equipment and landfill site Future planning must recognize that physical
planning so as to cut unnecessary limits exist at which certain levels of human
costs. activity will lead to undesirable and unaccept-
V. Government Objectives able degradations of the environment. This
Strive for the development of an effective concept is called "carrying capacity."
long-range County planning process In the coastal areas, the detrimental effects of
through: sewage disposal on ground and surface water
A. Improvement of channels for citizen resources represent an important example of
participation by the continued use of physical limitations on development. Up to a
public participation techniques used in certain density, the land is capable of absorbing
the development of this plan. human waste from onsite sewage disposal sys-
1. Public meetings conducted by tems without adverse effects on the quality of
elected and appointed officials. ground and surface waters within the area.
2. Questionnaires After that density is reached, any increased de-
3. Advisory committees velopment results in lowering the quality of
B. The development of methods of coor- ground and surface waters.
dinating planning efforts with all local At this point, a choice of alternatives for
governments within Carteret County. handling the situation are apparent. These al-
C. The development of better methods of ternatives include limiting further increases in
coordinating planning efforts on a re- density, putting money and energy into provid-
gional basis. ing alternative methods of waste disposal, or
D. The updating of all County land use tolerating the lower water quality as an accept-
regulations in accordance with this able "cost" of further development. Unfortu-
land development plan. nately, many people prefer the last of these
E. Striving for proper enforcement of alternatives, with little regard to degradation of
land use regulations. This should in- environmental aspects necessary for the quality
clude proper emphasis on assuring of life.
land use regulations which reflect the It is clear that at some point density must be
desires of the citizens, as well as em- regulated or the quality of water will be low-
phasis on proper training for all en- ered. This is especially true under present con-
forcement officers. ditions in most of Carteret County, and particu-
PUBLIC PARTICIPATION EFFORTS larly Bogue Banks, where individual wells and
septic tank systems predominate.
Once these objectives, policies, and stand- The choice of alternatives is further compli-
ards are determined, they should serve as a cated by the fact that the financial costs of alter-
guide with which to classify land areas to indi- native systems, even public sewerage facilities,
cate potential levels of development, as well as are high and there exists a general lack of mon-
to clearly establish priorities for action during ey to finance the projects. The amount of
the planning period. growth related sewerage facilities which will be
Due to the importance of this basic portion funded by EPA is strictly limited under existing
of the planning process, a great deal of effort regulations; and State Clean Water Bond Act
has been exerted toward obtaining public com- monies have effectively already been allocated
ment. It seems appropriate at this point to de- or expended. Therefore, Carteret County must
scribe the public participation process and recognize the very real possibility and at a time
summarize the comments received. The pur- when outside financing is decreasing.
pose of this section is to demonstrate the basis The significance of this discussion of carrying
for establishing major issues, objectives, poli- capacity is how it relates to Carteret County.
cies, and standards contained within the plan. Based on prior discussion of potential popula-
The alternatives that were considered are also tion increases in the County, it can readily be
discussed. seen that current conditions will not allow dou-
The Carteret County Planning Department bling or quadrupling the population of Carter-
used several methods of obtaining public parti- et County without adversely affecting the qual-
cipation in the planning process for this land ity of the water. This is especially true on Bogue
development plan. Banks and areas immediately adjacent to the
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ural environment and necessary to provide for ESTUARINE SHORELINES
the public health, safety or welfare. These lands Highest priority of use shall be allocated to
should be maintained in essentially their natur-
recreational, rural and conservation activities in
al state. those shoreline areas exhibiting a significant
The Classification Map indicates that most of erosion rate. High priority shall also be given to
the Development Land will occur in and water access and shoreline protection, provid-
around the existing towns. Additional growth, ed that public resources will not be detrimen-
Transition classification, occurs on the outskirts tally affected. Second priority of land use shall
of the municipalities and in the County areas be given to proposals which illustrate a sound
on Bogue Banks. Most of the growth is expect- understanding of the management principles
ed to occur around the towns, with more Com- of this dynamic and susceptible zone. Lowest
munity and Rural land uses expected to occur priority shall be allocated to major public facili-
in the County areas. ties that would promote growth in areas where
a substantial possibility of excessive public ex-
AREAS OF ENVIRONMENTAL CONCERN penditures for maintaining the use of the facili-
(AECs) ty may result or the facility would result in a loss
Carteret County contains land and water of significant private resources. Proposed de-
areas which are especially sensitive to develop- velopment that may harm estuarine resources
ment. They are physically or biologically fragile or cause damage to riparian properties will also
and could easily be damaged or destroyed by receive lowest priority,
poorly-planned or inappropriate development. OCEAN BEACHES
Listed below are the kinds of fragile areas Highest priority shall be allocated to recrea-
found in Carteret and the types of uses which tional uses that maintain the high quality of the
may be made of them. "The intent of AECs is
beach while providing access to public
not to stop development, but rather to ensure
beaches. Lowest priority is given to land uses
the compatibility of development with the con- involving the construction of permanent or
tinued productivity and value of certain critical substantial structures.
land and water areas."
COASTAL WETLANDS FRONTAL DUNES
Highest priority of use shall be allocated to Highest priority shall be allocated to the
the conservation of existing coastal wetlands. preservation of frontal dunes. Lowest priority
Second priority shall be given to those types of will be given to development that would in-
development activities that require water ac- volve the removal or relocation of frontal dune
cess and cannot function elsewhere. Lowest sand or vegetation.
priority will include restaurants and businesses; INLET LANDS
residences, apartments, motels, hotels and Highest priority shall be given to uses that do
trailer parks; parking lots and offices, spoil and not involve the construction of substantial
dump sites; wastewater lagoons; public and structures. Lowest priority will be allocated to
private roads and highways; and factories. major public facilities that promote develop-
ESTUARINE WATERS ment.
Highest priority of use shall be allocated to OCEAN ERODIBLE AREAS
the conservation of estuarine waters and their Highest priority shall be allocated to recrea-
vital components. Uses of second priority in es- tional and other nonstructural uses. Lowest
tuarine waters shall include those types of de- priority shall be given to structures for com-
velopment activities that require water access mercial or institutional purposes that encour-
such as simple access channels; structures to age growth in these hazardous areas.
prevent erosion; navigation channels; and boat IMPLEMENTATION
docks, piers, wharfs, and mooring pilings. Low-
est priority is allocated to those uses that would Implementation is the means by which the
adversely impact important marine grass beds; plan is carried out, or made to work. Carteret
spawning and nursery areas of valuable estu- County has already adopted several of the most
arine dependent species; important nesting, important implementation tools including a
feeding, and wintering sites of waterfowl and zoning ordinance, subdivision regulations and
wildlife. a dunes protection ordinance.
The permit system for development in Areas
PUBLIC TRUST AREAS of Environmental Concern and the public in-
Highest priority will be allocated to uses that vestment philosophy fostered by the Land Clas-
enhance the rights of the public within public sification System will be major new tools exer-
trust areas. Second priority will be given to nav- cised jointly by the County and the State.
igational channels, drainage ditches, the use of PLAN REVISIONS
bulkheads to prevent erosion and the building The Coastal Area Management Act requires
of piers, wharfs, or marinas. Lowest priority is local governments to update their plans every
given to projects which would directly or indi- five years. This is to account for changing con-
rectly block or impair existing navigation chan- ditions, new technology and your opinions on
nels, increase shoreline erosion, deposit spoils any subsequent issues. Your constant participa-
below mean high tide, cause adverse water cir- tion in the planning process is needed; not just
Culation patterns, violate water quality stand-
-L - everv five vears, but as a continuous voice in a

DATE DUE

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